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86 MADISON AVtiNiUE 

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RECOMMENDATIONS FOR A 

FEDERAL BUREAU OF DISTRIBUTION 


DEPARTMENT OF LABOR 



FRANCES A. KELLOR 

MANAGING DIRECTOR 


AND 

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ACTING CHICr IN VEST I GATOR N. V. STATE BUREAU OF INDUSTRIES AND IMMIGRATION 







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j0ortij American Heague for 

COMMITTEE O N LEGISLATION 
96 MADISON AVENUE 

NEW YORK CITY 


^JmmisjrantsS 


R* wOiV.MENDATIGNS f OR A 


FEDEF -UREAU OF DISTRIBUTION 


DEPARTMENT OF LABOR 




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FRANCES A. KELLOR 
•s 

MANAGING DIRECTOR 


AND 

JOSEPH MAYPER 

acting CHicr investigator n. y. static bureau or industries and immisration 


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i)UN I 1965 





RECOMMENDATIONS FOR FEDERAL LEGISLATION 

V In pursuing its work of developing state agencies for the dis¬ 
tribution. protection and education of aliens, the Committee on Leg¬ 
islation nas become convinced that this country will never have a 
successful method of assimilation until the work of such agencies 

has been coordinated by a central bureau. Furthermore, there are 

* 

many maters of interstate importance and concern with which the. 
mates cannot deal. The Committee has therefore laid before the De¬ 
partment of Labor the following recommendations for national legis- 
' lation, together with a brief statement of the conditions which neces¬ 
sitate such federal action . 1 

i. Affecting the Bureau of Immigration. 

i * 

t 

Recommendation: That the enforcement of the immigration 

laws continue to be vested in the Bureau of Immigration, under the 
immediate supervision of a Commissioner-General, responsible to the 
Secretary of the Department of Labor. That said Bureau deal only 
with the administration of the immigration laws, with reference to 
admission, exclusion and deportation of aliens, or with our inter¬ 
national or foreign policy regarding immigration. 

Legislation: This will require an amendment of the Immigra¬ 
tion Act taking the Division of Information and the administration of 
the sub-station at Chicago out of this Bureau. ' 

Conditions Necessitating Legislation: The question of the admis¬ 
sion or exclusion of the alien is determined by international agree- 

i 

ments, treaties, economic conditions and expansion of trades. If he 
is souna of body, possessing fair intelligence, has a minimum of money 
and a good record, the requir^emt^ of.our foreign policy have been 
complied with and he is permitted to enter this country. He is not 
questioned at the time of entry regarding his industrial or school 
training, his familiarity with our standards of living or as to his 
(knowledge of his rights and duties under our form of government. If 
he will not spread disease or crime and is not likely to become a public 
^charge, he is admitted. Once landed, the jurisdiction of the Immi- 

|- ' ■ 

j ^Appendix II. Chart on Bureau of Distribution Organization. 




























































’ * 






























































gi auoii Service ceases unless a question involving his deportation 
arises later. IIis desirability as a resident, however, is in no way 
determined by the conditions or problems he encounters on landing. 
Our laws and regulations expressing this foreign policy of admission, 
or exclusion and deportation are definite and comprehensive, and 
adequate machinery is provided for their enforcement. 

■% 

The beneficial distribution of the alien after arrival and his pro¬ 
tection while in transit from one state to another, are questions involv¬ 
ing our domestic policy. These, however, in no way influence his ad¬ 
missibility. The Division of Information, established in 1907, has de¬ 
voted most of its energies to finding employment for admitted aliens 
and furnishing information regarding “the resources, products and 
physical characteristics ” of the several states ‘for the purpose of 
promoting a beneficial distribution of aliens .’ As an important part 
of the process of assimilation, this work is closely connected with the 
•Idem of congestion in our industrial cities and in turn with our 
standards of living all of which affect our internal life primarily. 
The industrial and living conditions at the inland city where the de¬ 
mand for labor exists, or in the rural district, where his “land hun¬ 
ger'' may take him, and his safe transportation from one state to 
another, are problems apart from the restrictive features of our for¬ 
eign policy. Discrimination, frauds and abuses in matters of rates, 
accommodations, food and transfers with which the alien is now met 
as he travels through Chicago to he redistributed to the West en route 
to Ids final destination, require different treatment, i. e., internal regu¬ 
late, n. These considerations are so different from the restrictive 
negative features of our foreign policy, that they require a different 
point of departure. The broad policy of admission and exclusion 
should therefore be separated from the internal problems of as¬ 
similation. 

II. Affecting the Bureau of Naturalization. 

Recommendation: That a commission be appointed to make 
a study of naturalization with special reference to educational facili¬ 
ties, courts and employment. 1 

Legislation : That a hill he introduced appointing a commission 
to make an investigation along the following linesz 

> Appendix I. A Bill to Create a Commission on Naturalization (H. R. 5819). 


2 





















































i 









































•A 



















































































1. Administration of Naturalization Bureau, its appro¬ 
priation and equipment. 

2. Coordination of present Court and Bureau work. 

3. Question of the appointment of naturalization 
judges to sit in various parts of the state, and feasibility of 
night sessions. 

4. Existing facilities for the preparation for citizen¬ 
ship by schools, philanthropies, political organizations, etc. 

5. Extent and conditions of assistance rendered the 
aliens in obtaining papers by various persons, societies and 
institutions. 

6. Treaty and constitutional rights in relation to natur¬ 
alization. 

7. Effect of naturalization upon occupations. 

S. State naturalization laws. 

9. Position of women aliens with reference to suffrage. 
Conditions Necessitating Legislation : There are at present re¬ 
siding in the United States 3,612,700 foreign born male whites over 
21 years of age (or more than one-seventh of our total adult white 
population) eligible to citizenship, but who have not availed them¬ 
selves of its duties, obligations and benefits. 

The responsibility for the enforcement of our present naturaliza¬ 
tion laws is divided between the federal government, with its 250 
federal Circuit Courts, and the Bureau of Naturalization, and the 
state governments, with their 2,277 courts of record and their county 
clerks. How unequal is the distribution of these courts when com¬ 
pared with the geographical distribution of the naturalization business 
of the entire country, appears from the fact that in 1912 over 65 per 
cent, of all such business was transacted by only 18 per cent, of the 
number of courts having facilities therefor (in New York, California, 
Illinois, Massachusetts, New Jersey, Ohio, Pennsylvania). Even in 
these states it frequently occurs that applicants must travel, from four 
to eight times, 100 miles or more, to reach the county seat. Before 
final papers can be granted, the presence of the Bureau examiner is 
required in the court. As the former must cover a large territory, 
cooperation is often difficult. This is particularly true where night 
sessions of court are required by local conditions. County clerks, 
and court clerks in the smaller immigration states discourage and re¬ 
tard naturalization, as the fees are not tempting and they are unfamil¬ 
iar with the provisions of the law. State Courts are indifferent to this 
work, as they feel it is a federal function and that it interferes with 
their routine court litigation. Again, one judge is too strict, another 













































• I 
























































too lenient, and a single standard of qualification therefore does not 
exist. 

The law provides that the applicant must speak the English lan¬ 
guage and his examination includes a knowledge of civics, eighty 
per cent, of the more recent immigration comes from non-English- 
speaking countries. And yet no concerted effort has been made to 
prepare the alien to meet these requirements or to coordinate the work 
of the several State Departments of Education which have half¬ 
heartedly started classes in English to foreigners, with the required 
qualifications. Both in 1911 and 1912 it appeared that fully one-half 
of those declaring their intention to become citizens never file their 
petition for final papers, due generally to their inability to pass this 
examination and their removal to localities where it is difficult for 
them to qualify. At no time does the Federal, State or Municipal 
Government take any interest in the alien's preparation for the re¬ 
quirements it has set. The preparation, aid and education he now 
receives is supplied to him by bogus, self-interested citizenship asso¬ 
ciations, political clubs, lawyers, insurance agents, etc.—all tending 
to exploit him. The few well-meaning philanthropies, schools, 
etc., lacking proper supervision, make such preparation superficial, 
and unadequate or reach but a very small percentage of the aliens. 

The alien’s status and equality before the law have been frequently 
questioned by the passage of discriminatory laws. In nine states and 
one territory he has been practically prohibited from working on 
public works. Municipal regulations and ordinances prevent him in 
one city from obtaining a license for certain trades; in another he can 
easily obtain such a license, while in a third he must have declared his. 

intention to become a citizen. 

In workmen’s compensation laws, non-resident alien heirs are 
excluded from becoming beneficiaries in two states; in three states 
certain non-resident alien relatives may become beneficiaries, while m 
one state limited benefits are granted. 

In land ownership marked inequalities are shown; in three states 
he must have declared his intention before his rights are similar to 
those of a citizen; in one state he must be eligible to citizenship, while 
in others his rights and privileges are sharply but definitely de- 

In eight states an alien by filing his declaration of intention is by 
statute permitted to vote at all elections, whether state or national— 


4 








. 







■ • 







.. 




























while in all others this right is given only to citizens. Even though he 
can speak no English, and knows nothing about civics, a political 
“boss” or employer can drive him into a voting booth and dictate 
how the vote is to be cast. During the presidential election in 1908, 
in Indiana, for instance, 6,697 declarations were filed in the quarter 
between October 1st and December 30th (the voting period), while in 

the preceding quarter only 660 were filed, and in the succeeding quar- 

> 

ter only 71 were filed. 

Equal suffrage for women is now granted in ten states. As such 
legislation increases, it will sooner or later affect the 5,007,108 foreign 
born white females over 21 years of age. Under our laws, as natural¬ 
ization follows that of the husband and father, resident American 
women may be deprived of their vote by marrying an alien, while 
foreign born and recently arrived immigrant women may be imme¬ 
diately enfranchised by marrying a citizen. 

The Federal Constitution provides that Congress “is to establish 
a uniform rule of naturalization.” Naturalization is therefore a fed¬ 
eral function. A thorough investigation of the existing facilities, 
methods and opportunities for naturalization as it affects the various 
agencies charged with the execution of the naturalization laws; an 
inquiry into the educational preparation and opportunities afforded to 
enable compliance; an inquiry into the status of the alien throughout 
the country as to equalit}" before the law, and the need of standardiz¬ 
ing the inconsistencies and incongruities of the present state laws, is 
therefore a matter of paramount importance for the proper assimila¬ 
tion of our constantly increasing alien population. 

III. Affecting the Division of Information. 

Recommendations : That the present Division be transferred to 
a new Bureau and be renamed, to constitute the Bureau of Distribu¬ 
tion, and that its powers be enlarged, to (1) include the establishment 
of labor exchanges at other centers than New York; (2) furnish in¬ 
formation concerning business opportunities; (3) license and regulate 
employment agencies furnishing labor to persons or corporations 
doing an interstate business; (4) investigate conditions of unemploy¬ 
ment, and cooperate with state employment exchanges. 

Legislation : That a new law be passed creating a Bureau of 
Distribution in charge of an administrative officer, chief or commis- 


5 


































































sioner, under the immediate direction of the Secretary of Labor, 
vested with the above recommended powers, to include those now held 
by the Division of Information under Section 40 of the Immigration 
Act; and that the latter section be repealed as part of the immigration 
law. 

Conditions Necessitating Legislation : Between 25 and 30 per 
cent, of all breadwinners are unemployed during a portion of the 
year, according to the Census of 1900, in all manufacturing and 
mechanical pursuits, and domestic and personal service (including 
laborers) in every section of the country. In a study of the com¬ 
parative percentages of unemployed and of foreign born bread¬ 
winners by geographical divisions, it was found that approximately 
the same ratios of unemployment existed in the South Atlantic States, 
with only 2.9 per cent, of its total number of breadwinners foreign 
born, as in the North Atlantic States with 31.5 per cent, foreign born. 
(Dr. Isaac A. Hourwich—“Immigration and Labor”). This is due 
to a very considerable extent to the maladjustment between the de¬ 
mands for and the supply of labor. Wage-earners are thrown out of 
work by industrial causes; seasonal industries (farms, canneries, 
brickyards, railroad, waterway and highway construction, etc.), trade 
depressions, introduction of machinery, new processes, commercial 
failures and the like. They remain unemployed in many instances 
because they lack information as to where work is to be found, or be¬ 
cause they are unable to reach places of employment. 

Although unskilled labor is capable of shifting from one industry 
to another, yet the interchange of such labor under present conditions 
is restricted by geographical location. In comparing the iron and 
steel and lumber industries (Census of 1900), it was found that the 
variation between the greatest and the least number of men employed 
was 200,000 in the latter and only 80,000 in the former. In 1899 in 
Pennsylvania 3S,000 iron and steel workers were unemployed at one 
time or another, while only 9,000 extra men were hired in the lumber 
industry, i. e., over three-fourths of the idle steel workers could find 
no employment in the lumber industry in their own state. In Ohio, 
out of 13,000 unemployed steel workers only 6,300 temporary men 
found employment in the lumber industry in the same state. Thou¬ 
sands of men, however, were wanted in the lumber camps of Michigan, 
Wisconsin and Minnesota. But the steel laborer in Pittsburgh who 
is temporarily unemployed will not take the risk of hunting for a job 



























































































in the intervals, in the lumber camps of another state. (“Immigra¬ 
tion and Labor”). 

Unemployment in skilled labor is still more pronounced. Accord¬ 
ing to the Census of 1900, about one-half of all masons, plasterers, 
brick and tile makers were out of work a portion of the year. Over 
40 per cent, of all paperhangers, carpenters and painters and 27 per 
cent, of all tailors were also at times unemployed. Yet one-half of 
1,100 manufacturing concerns in New York State and employers gen¬ 
erally report that they have difficulty in obtaining skilled employees, 
while at the Division of Information almost 50 per cent, of the total 
number of persons who apply for information are other than farm 
or day laborers. 

For the more intelligent and ambitious alien laborer who wishes 
to invest his savings there is no way of learning with any degree of 
confidence what opportunities there may be for such investments.' 
The partnership frauds that so frequently find their way into our 
courts indicate how he places his faith in the wonderful business 
opportunities of the unscrupulous advertiser. 

The existence of an over-supply of labor in one place and an un¬ 
satisfied demand for it in another, is due to our haphazard and un¬ 
businesslike method of buying and selling labor. Organized markets 
exist for all articles of trade where buyers and sellers know where 
to meet and gauge accurately the supply and demand of a particular 
commodity. For labor, however, there is no such organized market— 
workmen must go from door to door looking for work, while employers 
must hang out the “Help Wanted” sign. 

Sixteen states—Colorado, Connecticut, Illinois, Indiana, Kansas, 
Maryland, Massachusetts, Michigan, Minnesota, Missouri, Nebraska, 
Ohio, Oklahoma, Rhode Island, West Virginia and Wisconsin—have 
authorized the establishment of state free employment agencies in an 
attempt to reduce unemployment within their respective borders and 
to counteract the evils of the private employment agent. The experi¬ 
ence of the states where such agencies have been properly financed and . 
conducted indicates that a considerable amount of unemployment and 
congestion can be eliminated. With the exception of four states, how¬ 
ever, Illinois, Massachusetts,-Michigan and Wisconsin, the activities 
of these agencies have been curtailed and hampered, by inadequate 
appropriations and inefficient management. Clerks at $1,000 and 
$1,200 per annum supervise the work in some states, while dingy and 


7 
















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insanitary quarters are being used in others, thus keeping away the 
more self-respecting workers. None of the state bureaus has facilities 
for handling immigrant labor. Statistics and records lack uniformity 
and reliability. States with large ports of entry, like New York, 
Pennsylvania, Louisiana, Texas and California, have no free agencies 
at all. No attempt has been made to centralize this disconnected work 
as between the several states, or to encourage its broader development 
in order to effect real distribution and relief from unemployment. In 
1907, in Oklahoma, for instance, according to the Director of the 
Free Employment Bureau, the cotton farmers lost about one-fourth 
of their crop, or about $12,500,000, for the want of cotton pickers, 
although there were thousands of unemployed laborers at the time. 
And such conditions, resulting so disastrously to both employer and 
employee, in failing to make connections, occur frequently in other 
industries as well. The state agency alone, no matter how well de¬ 
veloped, cannot deal with the conditions of unemployment and con¬ 
gestion as they exist in almost every industrial city, large or small, in 
the country. 

The Division of Information, with its main office at Washington, 
and i single active office at New York, cannot secure 

“the distribution of the thrifty immigrant to sections 
of the country where he may secure a permanent residence to 
the best advantage, and especially where he may invest his 
savings in farms or engage in agricultural pursuits.” 

as recommended by the Federal Immigration Commission. In 1912, 
the Division secured definite employment for 5,807 out of 26,212 ap¬ 
plicants. It has several times recommended the establishment of 
branches in Chicago, New Orleans and San Francisco in order to 
increase its usefulness and efficiency. To deal with the problem ade¬ 
quately, more than that is required. Its powers should be increased 
to include the furnishing of information concerning business opportu¬ 
nities and a chain of labor exchanges should be established at all im¬ 
portant ports and centers of distribution and industry. Uniform 
records should be kept and daily lists and reports showing the fluctu¬ 
ating demand for and supply of labor in the respective districts should 
be exchanged by all the federal labor offices. A central office, keeping 
in close touch with all the branch agencies and working harmoniously 
with the various state agencies, could thus coordinate the work of all 
governmental agencies. With the investigation of conditions of 


8 















































































































unemployment, congestion and transportation, as it varies in different 
sections of the country, dependent upon geographical and climatic 
conditions and localized business depressions, a clearing house ar¬ 
rangement could be organized which would equalize the corresponding 
geographical demand for and supply of labor throughout the whole 
country. 

The distribution and securing of work for the unemployed under 
existing conditions is now largely in the hands of the private 
employment agent or the “padrone.” Wherever the function of ad¬ 
justing the supply to the demand has been left in private hands, mis¬ 
representation, extortion and other dishonest practices have been 
found. Little attempt is made to get the right men for the right 
job, or to locate men in permanent places. As the Federal Immi¬ 
gration .Commission found: 

“Men do not apply for work. Whenever an order for 
laborers is received, the proprietor endeavors to fill it by 
offering the job, naming terms, to such idle men or men de¬ 
siring other work as he can find.” 

As a result, conditions are misrepresented. In New York City alone 
approximately 200,000 unskilled workers are hired and sent to jobs in 
different parts of the country. The greater the demand, and the far¬ 
ther away the job is from the agency, the greater the fraud and im¬ 
position upon the foreign laborer. The jurisdiction of state or mu-' 
nicipal authorities does not extend over those who are sent out of the 
state or city and no protection can therefore be afforded. The Com¬ 
missioner of Labor of Wisconsin describes how men in squads of 300 
were sent into his state for railroad work from another state. After 
three days had elapsed they were all discharged and another squad 
was ordered—each laborer being first required to pay a fee of $2. In 
this way in one week the railroad contractor and private agent in 
the adjoining state each made $600. But the Wisconsin authorities 
could not “reach” the agent in any way. Since local authorities are 
helpless in such interstate matters, the federal government should 
license all agencies engaged in such interstate business, and provision 
should be made for proper regulation in the form of bonds, fees, ref¬ 
erences and penalties for misrepresentation, etc. The license should 
be revocable on notice to the licensee and for cause shown. Power to 
subpoena witnesses and papers and hold hearings should be vested in 
the administrative officer in charge. 


9 



















. ' * 




















































IV. New Powers Witii Reference to Immigration. 

Recommendations : Add a section to the act creating the Bureau 
of Distribution, dealing with immigration, to include: (1) supervision 
and protection of aliens in transit; (2) licensing and regulation of 
steamship ticket agents doing an interstate business; (3) investigation 
of complaints affecting more than one state, with power to hold hear¬ 
ings and subpoena witnesses and papers and to effect as far as practi¬ 
cable amicable settlements or adjustments of such complaints; and (4) 
distribution of names of alien school children to states requesting same 
and of data concerning the movement of populations. -• 

Legislation: The hill creating the Bureau of Distribution should 
include and specify in detail the above recommended powers and 
duties. 

Conditions Necessitating Legislation: (1) Transportation: 

When the immigrant is admitted at the immigrant station, the gov¬ 
ernment’s responsibility terminates and no facilities are provided for 

/ 

his guidance or protection en route to his destination. Over 750,000 
aliens passed through the port of New York in 1912, going to or 
coming from every state in the Union. 

The handling of such an enormous number of people, generally 
non-English speaking, credulous and simple-minded, presents a fruitful 
field for exploitation by the hordes of unscrupulous train hands, ex¬ 
press agents, hotel representatives, hackmen, runners and railroad 
immigrant agents. While en route to his destination, the government 
is not concerned with his treatment, whether he is provided with suf¬ 
ficient food, whether he arrives safely, gets off at the right station, or 
whether the railroad equipment is decent, sanitary and adequate. At 
important redistribution centers or transfer points, such as Boston, 
New York, Philadelphia, Baltimore, New Orleans, Galveston, Cleve¬ 
land, Cincinnati, Kansas City, Minneapolis, St. Louis, Denver and 
San Francisco, the alien is again placed at the mercy of his exploiters. 
Some railroads have attempted to cope with this problem, but their 
efforts on the whole have not met with great success. Swindlers 
driven out of one station go to another, etc. Philanthropy has been 
more successful, but it works only in a limited field. That the prob¬ 
lem is a serious one is evident from the conditions found at Chicago 
by the Immigrants’ Protective League, where it appears that in 1910 
1,937 out of 4,762 women, or 29 per cent., could not be located. To im- 


10 


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•Y | : W' . ■ u 6 












•' 






































prove these conditions and eliminate fraud, government agents should 
he stationed at the various transfer points, with power to investigate 
conditions on immigrant trains and at terminals, supervise the transfer 
of immigrants from station to station, and to investigate and adjust 
complaints affecting aliens in transit. 

(2) Steamship Ticket Agents: Nearly a million steamship tickets 
(615,292 for departing aliens and 342,962 for prepaid admitted aliens 
in 1912) are sold every year in the United States by thousands of 
agents who operate in the thickly populated immigrant communities 
all over the country. The sale of this great number of tickets is 
largely effected by means of alluring advertisements of agents—each 
. of whom aims to outdo the other in offering inducements as to price, ac¬ 
commodations, lodging, baggage transfer, guide service, etc. Aliens em¬ 
ployed at inland points are thus frequently induced to buy tickets 
from agents doing business in other states—the sale being effected 
through the mails. Even where tickets are purchased in the same 
inland state where the alien resides, the port of departure is usually 
located in another state. Owing to these interstate complications, it is 
seldom possible to obtain redress for the exploited alien, as he wishes 
to depart and cannot obtain the action of the courts unless he returns 
to the state where the ticket was purchased. The frequency of com¬ 
plaints of fraud and misrepresentation is due to the fact that they 
are aware of the lack of jurisdiction of the officials of their own state. 
To remedy these conditions, the Bureau of Distribution should be 
given the power to license all steamship ticket agents doing an inter¬ 
state business, to require the filing of bonds, fees and references, and 
be authorized to inspect their books on complaints and provide 
for penalties for fraud, misrepresentation, etc. Such a license should 
be revocable on notice to the licensee and for cause shown. Power 
to subpoena witnesses and papers and hold hearings should be vested 
in the administrative officer in charge. All steamship companies 
should be required to register with the Bureau the names and ad¬ 
dresses of all appointed agents. 

(3) Interstate Complaints: Newly arrived immigrants who 
have lived the narrow, domestic life of peasants and are unfamiliar 
with American customs, traditions, government-and laws, cannot make 
themselves understood and do not know where to go to obtain redress 
if defrauded or exploited by those with whom they come into contact 
and who regard them as their prey. Employed largely in temporary 

' 11 

















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& 





' 















■ 






















































or seasonal occupations, constantly roving about the country from one 
state to another, wherever work can be had, a transient, who of neces¬ 
sity cannot long remain in a place unless employed and earning a 
livelihood, he falls an easy prey to exploitation by his employer, his 
“banker,” his notary, his boarding boss, steamship ticket agent, and 
other agent to whom he must apply. Shifted in large blocks from 
one state to another, he is absolutely at the mercy of his padrone, 
who mulcts him at every turn and makes extortionate deductions from 
his wages for food, clothing, lodging, fees, etc. Knowing that the alien 
cannot long remain in any one place in order to assume the expense 
and delay of court litigation, the exploiter is encouraged to continue 
his irregular and dishonest transactions. 

His difficulties, so frequently interstate in their nature, cannot 
be adjusted by any state government, as its jurisdiction does not ex¬ 
tend beyond its own borders. The experience of the New York State 
Bureau of Industries and Immigration, the only State Bureau which 
has undertaken this work within a state on a permanent basis, has 
demonstrated that the alien’s peculiar problems, due to language lim¬ 
itations and need of industrial and social adjustment in a new country, 
while often properly matters for a court, can be adjusted or settled 
before an impartial referee, who can secure for him an early hearing 
and bring the aggrieved parties together. In one year, in 1912, two 
hundred and thirty miscellaneous complaints were filed with this 
Bureau by persons residing in 27 different states, although no effort 
was made to reach immigrants outside of New York State. They in¬ 
cluded complaints involving wages, private banks, real estate, lost 
baggage, personal injuries, lawyers, collection agencies, steamship 
ticket agencies, etc. The Bureau could only refer these to charitable 
organizations outside of the state. 

To remedy these interstate complaints, the administrative officer 
of the Bureau of Distribution should be empowered to investigate any 
and all complaints with respect to frauds, extortion, incompetency 
and improper practices by public officials, or by any other person or 
by any corporation, whether public or private, and present to the' 
proper authorities the results of such investigation for action thereon. 
He should also be vested with power to hold hearings, subpoena wit¬ 
nesses and records, and to effect as far as possible amicable settlements 
or adjustments of such complaints. 

(4) Distribution of School Names: No record of the arrival in 

12 


> 


s. * 






























.this country of alien children of school age has ever been furnished 
to the school authorities throughout the country. Although thousands 
of such children arrive annually, there has been no way of knowing 
whether or not these children were placed in school. Alien parents 
are often ignorant of the fact that schools are free and education com¬ 
pulsory. As a result, many children are sent at once into shops and 
into domestic service. An experiment in securing and distributing 
the records of children arriving at Ellis Island, destined to the States 
of New York and New Jersey, has been carried on in these 
two states and in the year ending May 30, 1912, the records 
of 18,700 children w r ere distributed among the various superintendents 
of education. The Ellis Island authorities have also been sending such 
names to Massachusetts and Illinois, where philanthropic immigrant 
societies apportioned them among the school authorities. Placing the 
immigrant child in school immediately on arrival is of the utmost 
importance to the educational progress of the nation, and the names 
and records of all children of school age should be distributed by the 
Bureau of Distribution to all states requesting them. States also could 
deal more intelligently with their resident aliens if they were fur¬ 
nished with information concerning distribution, nationality, destina¬ 
tion, time of arrival and other data. ✓ 

V. New Powers With Reference to Land. 

Recommendations : Add a section to act creating the Bureau of 
Distribution, providing for (1) the registration and furnishing of in¬ 
formation concerning lands for settlers, and investigation of the 
terms and conditions under which such land is offered for sale; (2) 
urging the adoption by the Federal Government of some method of 
providing long-time, low-interest loans to settlers for the purpose of 
aiding them to purchase land, make specified improvements or dis¬ 
charge existing indebtedness on the land. In this connection a careful 
study should be made of the systems of state advances to settlers, in 
successful operation in New Zealand and Australia, and the systems 
by which school funds are invested in farm mortgages in the states of 
Idaho, Indiana, Iowa, Oklahoma, Oregon, North and South Dakota. 

Legislation: The bill creating the Bureau of Distribution should, 
specify in detail the above recommended powers. 

Conditions Necessitating Legislation: (1) Sale of Lands- 
According to the 1910 census, only about 30 per cent, of the total 
foreign born white males, as compared with 65 per cent, of the total 

13 ! 




















• • 































native white males of native parentage lived in the rural districts. Of 
all aliens admitted in 1912, about 40 per.cent, of the unskilled occupa¬ 
tions were farm laborers (1S4,154 out of 4S6,401), yet a very small 
proportion of them go into farming. The Federal Immigration Com¬ 
mission in a study of the Italian immigrants found that: 

“though it is estimated that more than 60 per cent, of them 
come from rural districts in Italy, comparatively few of them 
have become farmers in the United States. According to the 
twelfth census, a total of 293,424 male Italians over 10 years 
of age of first and second generation were engaged in gainful 
occupations; only 18,227, or 6.2 per cent., were in agricul¬ 
ture/’ 

Not only do so few of the large number of aliens coming from farming 
districts fail to enter into agricultural pursuits, but most of their sav¬ 
ings are either transmitted abroad or taken home by them to invest in 
less fertile and more expensive lands. From January 1, 1907, to June 
30, 1909, the transmissions alone, through the Post Office and large 
foreign bankers, totalled over $450,000,000. The Federal Immigra¬ 
tion Commission advances several reasons for this apparently anoma¬ 
lous situation: 

“Substantially all Italian immigrants are poor and 
come here to better their economic condition. As a newcomer, 
he must therefore engage in some occupation that will give 
him immediate returns. He has no money to travel—no cap¬ 
ital—of necessity he becomes a wage-earner. Furthermore, 
the chances are that he knows nothing about opportunities in' 
agriculture. A friend, or padrone, or labor agent, directs 
him to unskilled work, at wages that seem to him munificent, 
and he gladly accepts employment. Not only is it econom¬ 
ically impossible for a newcomer to buy land and engage 
in farming, but to the day laborer no industry offers, in addi- _ 
tiou to immediate wages, comfort and companionship of his 
fellows, usually a home among Italians, and a feeling of se- . 
curity and confidence that comes to one only when he can 
make his wants known in his own language. It is possible 
that many Italians after gaining their economic independ¬ 
ence and accumulating a little money would become farmers 
if they knew where to buy cheap land.” 

The government’s failure to furnish immigrants and others with 
full information concerning lands for settlers has also resulted in the 
emigration of some of our sturdiest and most desirable residents to the 
Dominion of Canada. For the five fiscal years from 1908 to 1913, 
about 49 per cent, of the total admissions- to Canada from the United 













































States (274,364 out of 557,800) were classified as farmers or farm 
laborers. About $133,000,000 was brought into Canada by emigrants 
from the United States in one year (1911-1912). “This emi¬ 
gration of our own good farmers furnishes , much food for 
thought, for they are superior to most of the immigrants we are re¬ 
reiving, ” comments the Commissioner of Immigration at New York. 

To counteract this exodus of our best farmers to Canada and 
the failure of our “new” immigrants to invest their savings in agricul¬ 
tural enterprise and to be able to offer thoroughly investigated and 
bona-fide opportunities for land investment, the Bureau of Distribu¬ 
tion, as a central office and with the co-operation of the various state 
land offices should be empowered to keep a register of all available 
land and to furnish information regarding such lands, trans¬ 
portation facilities, nearest markets and other details to all who 
desire to settle on them, and to investigate the terms and con¬ 
ditions under which such lands are offered for sale. 

Thiry-seven states have immigration bureaus, or labor, land and 
agricultural bureaus, largely devoted to the task of outlining plans - 
“for an effective exploitation of the resources of the state and of the 
opportunities for investment therein. ’ 1 Lists or registers of the names 
of all persons inquiring about land are compiled by some states, for 

the use of the real estate men of that particular state. The unscrupu- 

\ * - 

lous agent is now enabled to use these lists for his own ulterior pur¬ 
poses. No attempt, however, is made to obtain for the investor a reg¬ 
ister of those real estate agents whose lands are good and cheap and 
who offer bona-fide opportunities for settlers. 

The state land bureaus or offices are interested merely in the 
sale and disposition of state lands, and do not concern themselves with 
the purchaser’s plans for the disposition of his property. “Coloniz¬ 
ers” or “Colonizing Companies” who make such purchases then ex- . 
ploit such lands by means of brilliant advertisements, circulars, etc. 
Their activities are not recorded or investigated. As a result of the 
colossal frauds thus made possible, aliens residing in another state 
have been induced to buy ponds, sand pits and jungles for a home or 
farm. Once deceived or defrauded, it is very hard again to interest 
them in land or in a farm or to encourage saving for a home in this 
country. The agricultural development of the United States, the one 
large field which has not as yet been thoroughly exploited and on the . 
development of which the wealth and prosperity of a nation depends, 








































requires that this matter should receive careful consideration, as it 
already has in Canada, Brazil, New Zealand and Australia—other im¬ 
migrant receiving countries. 

(2) Long-time, low-interest loans to settlers: Under present condi¬ 
tions the laborer who has invested his savings in farm land, usually 
has little left to supply the money needed for sowing, cultivation and 
harvesting of crops or to purchase equipment, make improvements or 
erect buildings. The return on his investment the first or second year 
scarcely enables him to meet the current demands, expenses and in¬ 
terest on his mortgages. He must soon borrow money for a short 
period of time only—from the loan-shark, who makes exorbitant in¬ 
terest charges and who deducts a large bonus. He thereafter remains 
in constant fear of foreclosure and if the crops are poor his entire in¬ 
vestment is soon lost. 

The improvement of the credit facilities of the farmer in America 
in order to secure capital with which to carry on his business must be 
undertaken immediately if he is to be kept within the geographical 
limits of the United States. The cost of his expenditures, whose bene¬ 
fits are distributed through a long term of years, should also be spread 
over a somewhat similar period of time in order to conserve his work¬ 
ing capital. Although he has the best kind of security to offer, he is 
unable to obtain either short or long-time loans on reasonable terms. 
This is due to the fact that no adequate system ‘‘for the marketing of 
the farmer’s security” has been organized in this country. In New 
Zealand and Australia, the system of advances to settlers has been in 
successful operation since 1895. Millions of dollars have been loaned 
at about four and one-half per cent, or five per cent, interest for a 
term of even thirty-six and one-half years, and yet profits have been 
made. In the United States, the States of Idaho, Indiana, Iowa, 
Oklahoma, Oregon, North and South Dakota have invested their school 
funds in farm loans in the same manner for shorter periods of 
time and slightly higher rates of interest, also with considerable suc¬ 
cess. To keep the thrifty alien resident within our midst and en¬ 
courage the agricultural development of our country, the Bureau 
of Distribution should make investigations looking to the adoption 
by the Federal Government of some method of providing long-time, 
low-interest loans to settlers for the purpose of aiding them to pur¬ 
chase land, make specified improvements or discharge existing in¬ 
debtedness of land 1 . 

^Appendix II. Chart on Bureau of Distribution Organization. 

- 16 . - 























■ 



. 









Appendix I. 


' A BILL 

TO CREATE A COMMISSION ON NATURALIZATION. 

Be it enacted by the Senate and House of Representatives of the 
United States of America in Congress assembled, That a commission 
is hereby created to be called the Commission on Naturalization. Said 
commission shall be composed of five persons, to be appointed by the 
President of the United States, by and with the advice and consent of 
the Senate. The Department of Commerce and other departments 
concerned are authorized to cooperate with said commission in any 
manner and to whatever extent the Secretaries of said departments 
may approve. 

Sec. 2. That the members of this commission shall receive no 

\ 

compensation, but shall be paid actual traveling and other necessary 
expenses while actually engaged on the work of the commission and 
while going to or returning from such work. The commission is au¬ 
thorized as a whole, or by subcommittees of the commission, duly ap¬ 
pointed, to hold sittings and public hearings anywhere in the United 
States, to send for persons and papers, to administer oaths, to summon 
and compel the attendance of witnesses and to compel testimony, and 
to employ such secretaries, experts, stenographers and other assistants 
as shall be necessary to carry out the purposes for which such com¬ 
mission is created, and to rent such offices, to purchase such books, 

\ 

stationery and other supplies, and to have such printing and binding 
done as may be necessary to carry out the purposes for which such 
commission is created, and to authorize its members or its employees 
to travel in the United States on the business of the commission. In 
aid of its powers herein granted, the commission shall be and is here¬ 
by empowered to invoke the aid of any district court of the United 
States having jurisdiction in the district wherein said aid is required 
to enforce its orders, and jurisdiction is hereby granted to such dis¬ 
trict courts of the United States to issue upon petition of the com¬ 
mission the necessary process and writs to carry out the orders of said 
commission and to compel obedience to the subpoenas of said commis¬ 
sion or to compel testimony and production of documentary evidence 
in response to such subpoenas. 


■V 
























































' • 

































Sec. 3. That said commission shall report to the Congress its 
findings and recommendations and submit testimony taken not later 
than January first, anno Domini nineteen hundred and fourteen, 
and make a final report not later than January first, anno Domini 
nineteen hundred and fifteen, at which time said commission shall 
expire. 

Sec. 4. That said commission shall inquire into the conditions of 
admitted aliens within the several States with respect to facilities, 
methods, and opportunities for naturalization in the various State 
and Federal courts, and the relation of such court procedure to the 
Federal bureaus of naturalization; shall inquire into the educational 
preparation and opportunities afforded in each State for such ad¬ 
mitted aliens to comply with the provisions of the naturalization 
law; and slfall inquire into the status of aliens in the various States 
with respect to equality before the law, pursuance of occupations for 
a livelihood, acquirement and disposition of property, holding of 
public office, and voting; and such other conditions concerning the 
naturalization of admitted aliens as affect the welfare and progress 
of this country. 

Sec. 5. That said commission shall make recommendations in its 
report concerning the matters herein referred to it, and in the event 
that governmental action is recommended it shall be the duty of the 
commission to draft and submit with its final reports tentative drafts 
of such a bill or bills as are deemed by the commission necessary, 
suitable and sufficient to carry out its recommendations.' 

Sec. 6 That the sum of $50,000 is hereby appropriated, out of 
any money in the Treasury of the United States not otherwise appro¬ 
priated, for the use of the commission for the fiscal year ending June ' 
thirtieth, nineteen hnudred and fourteen: Provided, That no portion 
of this money shall be paid except upon the order of said commission, 
signed by the chairman thereof. 










■+*4 















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FEDERAL DEPARTMENT OF LABOR 










































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